欧盟共同农业政策与地区政策及其经验借鉴
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摘要
中国在改革开放30年的今天,地区及城乡经济发展差距不断扩大,市场分割现象突出,二元经济表现仍然十分明显,无论从反映地方保护主义的地方化系数,还是从反映要素商品流动的省际贸易流量,或者反映商品生产各环节市场化的统一程度来看,作为单一主权国家——中国的内部市场一体化程度都很低。而且,不同地区市场化程度差异较大,行业(部门)市场化程度也不一致,市场一体化进程中的利益分化明显,这些都将成为我国经济可持续发展乃至和谐社会构建的重大障碍。因此,着力进行市场整合,促进我国市场一体化发展是当前重要工作之一。
欧盟区域一体化建设之初,也存在较大的地区经济差距问题和工农业发展的某种“二元经济”特征,但至今其一体化深化已经发展到了经货联盟,这有效配置了成员国之间的要素资源,大大促进了欧盟及其成员国经济的发展。欧盟一体化发展之所以程度如此之深,共同农业政策和共同地区政策扮演了相当重要的角色。由于各种生产要素无论在数量还是在质量上客观存在的差异,使得一体化市场既涉及区域问题,也涉及产业布局问题。而农业作为产业的基础,由于其自身的弱质性和因客观地理气候对农业就业及收入的影响较大,没有农业政策的扶持与规制,地区差距问题就无法得到有效解决;依靠地区政策解决地区问题,可以通过与其它政策(尤其是财政政策)相结合,可以在各产业间协调或平衡相关利益,使农业及其就业有足够的发展动力。也正因为如此,它们共同构成了欧盟市场一体化发展最重要的基础。共同农业政策促进工农业部门利益的形成,而地区政策着力解决这种利益在形成过程中因市场一体化中产业调整等原因形成的不平衡问题。共同农业政策和共同地区政策在建立有效运行机制上促进效率与公平的实现,有利于市场一体化的发展。没有这两项共同政策,就不可能推动欧洲单一市场,甚至欧洲经货联盟(欧元)的形成和发展,更不用说难以协调的、具有不同主权的成员国国家利益的平衡。
而在欧盟农业发展和地区经济平衡过程中,从系统的角度看待二元经济的发展及农业市场一体化的相关理论和地区发展的内生增长、聚合、市场力、均衡和非均衡协调发展的有关理论都充分说明,以产业(即产业政策)和(农业或地区发展)项目为基础的功能性和制度性市场一体化发展的结合与推动,特别是为协调成员和产业发展利益的共同(统一)政策在这方面发挥了很好的作用,这对地方市场分割等不利于市场发展的力量都有一定的抑制作用。
共同农业政策适应了战后欧洲一体化联合的迫切需要,凸显了该政策在欧共体推动市场一体化进程中进行政策选择的价值,它所发挥的作用明显地揭示了农业产业从而政策本身在市场一体化发展中的基础性地位,并在平衡成员国利益的基础上推动了市场一体化的发展,这凸显了市场一体化发展的根本目的,即各参与方的利益。而共同地区政策触及市场一体化产生的根本性问题,即市场存在失灵;这项政策以资源、产业为基础的自助式援助,获得了更多推动市场一体化发展的内生动力,并在缩小地区经济差距方面的努力,获得了对一体化政策更广泛的支持。而且,一体化市场本身的良好发展也很好地阐释了共同地区政策的真正内涵,即共同体意义而非国家意义上的地区融合。
而我国日益扩大的地区经济差距问题,也不断引起了人们对利益分配及市场一体化的关注。而在中国,农业在各产业从而农村在城乡中的差距是构成地区差距的一个重要因素。“三农”发展和地区经济差距的缩小,都体现了利益的平衡和协调的问题。“三农”问题解决不好,城乡差距会进一步扩大,在城市化水平呈现地区差异的基础上,东西部地区经济差距将进一步扩大,改革开放国家战略下的利益分配会更加不平衡。在市场一体化发展过程中,只有解决好了农业(三农)的发展,中国的粮食供应和民生保障才会有出路,产业间的协调发展以及农业对其他产业的推动才会有坚实的基础。而地区经济差距不缩小,将加大农村人口占绝大比重的中西部地区的比较劣势,“三农”利益难以维护,社会和谐难度加大。因此,中国的市场一体化问题,仍然体现着基础性的农业和地区问题的相互交织。重视农业基础地位,加快“三农”发展,努力缩小地区经济差距,都将成为促进市场一体化发展和推动和谐社会构建的工作重点。
共同政策在规制市场发展中的不同利益方面具有相当重要的作用,其内容的设计及其本身既体现了功能性市场一体化,也体现了制度性一体化的内涵。尤其是共同(统一)政策在协调区域和产业利益分配方面具有较强功能。共同政策下政府支出的内生经济增长作用,能够增加一体化市场推动下要素流动的供给和需求弹性,从而促进供需双方的福利改善;以产业、资源、地缘为特征的共同政策在削弱地方主义分割国内市场方面有重要作用,一是可以减少政绩工程,二是可以平衡地方政府以地方利益为导向的市场干预能力;三是以市场一体化为出发点的共同政策并不会削弱地方政府的内生经济增长作用,只是中央政府必须建立和完善财政转移的支付机制,使其有效发挥一体化市场中利益协调的功能。
中国在推进和谐社会构建,坚持科学发展观的道路上,市场(一体)化必须不断推进,利益必须加以协调,为此可以借鉴欧盟共同农业政策和共同地区政策在市场一体化中的运行机制,包括:制定和完善统一市场的、以促进产业发展的农业和地区发展政策;建立相应的以产业、资源、地缘为特征的农业和地区发展基金;确立具体的、以推进市场一体化发展为目标的农业和地区发展项目;设立职责明确的农业和地区指导、监督、政策制定和市场协调机构;必须要有一个有效的财政转移支付机制;建立有效的反馈与修正体系。
市场一体化要体现稳定、创新、竞争性协调发展的市场动态变革过程,即市场一体化本身具有的动态意义,因此本身涉及的农业(发展)政策、地区(合作)及财政政策要在一体化发展过程中体现出内容上的创新和发展。特别是现在的“板块”经济,促进其网络式发展,将大大增强中国市场一体化的发展潜力。无论是农业问题还是地区经济发展问题,在合作、谈判与争取权利中,充分利用可以利用的国际规则和生产要素,可以增强自身内部市场回旋的余地,获得为不断完善的内部市场争取更广阔发展空间的能力。
After 30 years of reform and opening-up, regional and urban-rural economic gaps in China have been broadening, the phenomena of market segmentation have been sharpening and the feature of“dual economy”has still been very obvious. No matter examined from localization coefficient reflecting regional protectionism, or from the inter-provincial trade flow of goods and factors, or from integration degree of marketization of the links of production chain, the integration of internal market of China with a unique sovereignty is not just as one wishes. In addition, there are big differences of marketization degree amongst regions and amongst industries, and there are clear divisions of interests in the process of market integration. All of these will be obstacles to sustainable development of Chinese economy and to build a harmonious society. So making efforts to integrate market and promote development of market integration is important work at present.
At the beginning of regional integration of the European Union (EU), there was a big regional economic gap and somehow showed a“dual economy”feature among its member states, but so far its integration has been deepening to economic and monetary union,which is significantly helpful for effective resource allocation among the member states, and hence substantially promotes their economic development. In this process, common agricultural policy and common regional policy play crucial roles in deepening the integration. Since there are some objective differences in quantity and in quality amongst various production factors, market integration involves regional problems as well as industrial ones. As the foundation of industry, agricultural problem and hence problem of regional economic gap will not be effectively solved for the fragility of agriculture and great impacts of geography and climate on employment of farmers and their income. Combining with other policies (especially financial policy), solving regional problem through regional policy can coordinate or balance related interests amongst industries, and hence give full impetus to agricultural development. Just for these reasons, they constitute most important foundation of market integration of the EU. Common agricultural policy promotes interest formation of agricultural and industrial sectors, while common regional policy make an attempt to resolve the interest imbalance problem arising from such reasons as readjustment of industrial structures for market integration. Common agricultural policy and common regional policy promote achievement of efficiency and equity based on an effective operating mechanism, which is helpful for development of market integration. Without these two common policies, European single market will not be promoted, economic and monetary union (the Euro) will not emerge, and let alone national interests, difficult to coordinate, of member states with different sovereignties.
In the process of agricultural development and regional economic balancing, visual angle of development of dual economy and the theories related to agricultural and regional economic development, such as endogenous growth, convergence, market power and (im)balanced development, fully illustrate that combination and promotion of functional and institutional integrations based on concrete industrial, agricultural and regional development projects, especially common policies coordinating interests of the member states and industrial development, played an important role, which can restrain local market segmentation and etc.
Common agricultural policy met the needs of European integration after WWII, which highlights value of policy selection in the process of promoting market integration of European Community. Its role evidently reveals fundamental status of agriculture and the policy itself and promotes development of market integration based on balancing interests of member states: essential goals of market integration. While common regional policy touches a basic issue of market development: market failure. With an orientation of resource and industry, the self-help assistant under common regional policy gains widespread support. A sound development of market integration itself gives a good explanation of real connotation of common regional policy: mix together of regions in a sense of the community, not a country.
In the meantime, regional economic gap is increasingly expanding in China, which has aroused general concern over interest distribution and market integration. Bad development of agriculture and rural area is a very important reason for regional economic gap. The development of "agriculture, rural areas and farmers”and the narrow of regional economic gap emphasize equilibrium and coordination of interest. If the issue of“agriculture, rural areas and farmers”is not carefully and skillfully handled, the gap between urban and rural areas, as well as economic gap between eastern and western regions for different urbanization level, will further broaden, and interest distribution under national reform and opening-up strategy will be more imbalanced. In the process market integration,only development of agriculture (and even rural areas and farmers) can find a way out to ensure grain supply and people's well-being of China, and to lay a solid foundation to industrial coordinated development and promotion function of agriculture to other industries. Adversely, the broadening of regional economic gap will strengthen comparative disadvantages of central and western China where a large proportion of urban population exists,and it is difficult to safeguard interests of "agriculture, rural areas and farmers”, and the difficulty of social harmony will become bigger. So, Chinese market integration still embodies that fundamental agricultural and regional problems mix together. To emphasize fundamental status, to fasten development of "agriculture, rural areas and farmers”and to attempt to narrow regional economic gap will be focal point of the work of promoting market integration and building harmonious society.
Common policy plays an important role in regulating different interests in market development. Policy design and policy itself embody both functional integration and institutional one. Especially common/unified policy can perform an important function of coordinate interest reallocation amongst regions and industries. Endogenous growth of government expenditure under common policy can make demand and supply of factors more elastic through market integration, and hence promote welfare of two sides. Common policy, with characteristics of industry, resource and location, can play an important role in weaken localism segmenting internal market. First, it can reduce vanity projects; second, it can regulate intervene power, with an orientation of local interests, of local government; third, it will not weaken role of endogenous economic growth of local government who works with a starting point of market integration, only central government must establish and perfect payment mechanism of financial transfer to coordinate interests in the integrating market.
On the way to build a harmonious society and persist in the scientific outlook on development, China must continue to promote market integration and coordinate interests. In this connection China may use the experiences of the operating mechanism of common agricultural policy and common regional policy of the EU in the process of market integration, including: 1) to formulate and perfect unified agricultural and regional policies promoting industrial development based on market; 2) to set up agricultural and regional development fund or regional policy with characteristics of industries, resources and regions ; 3) to establish concrete agricultural and regional development programmes with a goal of promoting market integration; 4) to build an organization with clearly-defined responsibilities, which guides, supervises, coordinates agricultural and regional development and policy-making based on market; 5) to establish an effective financial transfer payment mechanism; 6) to build an effective feedback and correction system.
Market integration should reflect a dynamic change process of stable, innovatory, competitive and coordinated development. So agriculture, regional and financial policies should embody innovation and development of policy content in the process of market integration. Especially today to promote open and interconnected development of“plate”economy will largely strengthen development potential of Chinese market integration. Making full use of international rules and factors to resolve agricultural and regional economic problems in negotiation, cooperation and competition will leave enough room for themselves to maneuver and to gain power to perfect continuously internal market and strive for a broader development space.
欧盟区域一体化建设之初,也存在较大的地区经济差距问题和工农业发展的某种“二元经济”特征,但至今其一体化深化已经发展到了经货联盟,这有效配置了成员国之间的要素资源,大大促进了欧盟及其成员国经济的发展。欧盟一体化发展之所以程度如此之深,共同农业政策和共同地区政策扮演了相当重要的角色。由于各种生产要素无论在数量还是在质量上客观存在的差异,使得一体化市场既涉及区域问题,也涉及产业布局问题。而农业作为产业的基础,由于其自身的弱质性和因客观地理气候对农业就业及收入的影响较大,没有农业政策的扶持与规制,地区差距问题就无法得到有效解决;依靠地区政策解决地区问题,可以通过与其它政策(尤其是财政政策)相结合,可以在各产业间协调或平衡相关利益,使农业及其就业有足够的发展动力。也正因为如此,它们共同构成了欧盟市场一体化发展最重要的基础。共同农业政策促进工农业部门利益的形成,而地区政策着力解决这种利益在形成过程中因市场一体化中产业调整等原因形成的不平衡问题。共同农业政策和共同地区政策在建立有效运行机制上促进效率与公平的实现,有利于市场一体化的发展。没有这两项共同政策,就不可能推动欧洲单一市场,甚至欧洲经货联盟(欧元)的形成和发展,更不用说难以协调的、具有不同主权的成员国国家利益的平衡。
而在欧盟农业发展和地区经济平衡过程中,从系统的角度看待二元经济的发展及农业市场一体化的相关理论和地区发展的内生增长、聚合、市场力、均衡和非均衡协调发展的有关理论都充分说明,以产业(即产业政策)和(农业或地区发展)项目为基础的功能性和制度性市场一体化发展的结合与推动,特别是为协调成员和产业发展利益的共同(统一)政策在这方面发挥了很好的作用,这对地方市场分割等不利于市场发展的力量都有一定的抑制作用。
共同农业政策适应了战后欧洲一体化联合的迫切需要,凸显了该政策在欧共体推动市场一体化进程中进行政策选择的价值,它所发挥的作用明显地揭示了农业产业从而政策本身在市场一体化发展中的基础性地位,并在平衡成员国利益的基础上推动了市场一体化的发展,这凸显了市场一体化发展的根本目的,即各参与方的利益。而共同地区政策触及市场一体化产生的根本性问题,即市场存在失灵;这项政策以资源、产业为基础的自助式援助,获得了更多推动市场一体化发展的内生动力,并在缩小地区经济差距方面的努力,获得了对一体化政策更广泛的支持。而且,一体化市场本身的良好发展也很好地阐释了共同地区政策的真正内涵,即共同体意义而非国家意义上的地区融合。
而我国日益扩大的地区经济差距问题,也不断引起了人们对利益分配及市场一体化的关注。而在中国,农业在各产业从而农村在城乡中的差距是构成地区差距的一个重要因素。“三农”发展和地区经济差距的缩小,都体现了利益的平衡和协调的问题。“三农”问题解决不好,城乡差距会进一步扩大,在城市化水平呈现地区差异的基础上,东西部地区经济差距将进一步扩大,改革开放国家战略下的利益分配会更加不平衡。在市场一体化发展过程中,只有解决好了农业(三农)的发展,中国的粮食供应和民生保障才会有出路,产业间的协调发展以及农业对其他产业的推动才会有坚实的基础。而地区经济差距不缩小,将加大农村人口占绝大比重的中西部地区的比较劣势,“三农”利益难以维护,社会和谐难度加大。因此,中国的市场一体化问题,仍然体现着基础性的农业和地区问题的相互交织。重视农业基础地位,加快“三农”发展,努力缩小地区经济差距,都将成为促进市场一体化发展和推动和谐社会构建的工作重点。
共同政策在规制市场发展中的不同利益方面具有相当重要的作用,其内容的设计及其本身既体现了功能性市场一体化,也体现了制度性一体化的内涵。尤其是共同(统一)政策在协调区域和产业利益分配方面具有较强功能。共同政策下政府支出的内生经济增长作用,能够增加一体化市场推动下要素流动的供给和需求弹性,从而促进供需双方的福利改善;以产业、资源、地缘为特征的共同政策在削弱地方主义分割国内市场方面有重要作用,一是可以减少政绩工程,二是可以平衡地方政府以地方利益为导向的市场干预能力;三是以市场一体化为出发点的共同政策并不会削弱地方政府的内生经济增长作用,只是中央政府必须建立和完善财政转移的支付机制,使其有效发挥一体化市场中利益协调的功能。
中国在推进和谐社会构建,坚持科学发展观的道路上,市场(一体)化必须不断推进,利益必须加以协调,为此可以借鉴欧盟共同农业政策和共同地区政策在市场一体化中的运行机制,包括:制定和完善统一市场的、以促进产业发展的农业和地区发展政策;建立相应的以产业、资源、地缘为特征的农业和地区发展基金;确立具体的、以推进市场一体化发展为目标的农业和地区发展项目;设立职责明确的农业和地区指导、监督、政策制定和市场协调机构;必须要有一个有效的财政转移支付机制;建立有效的反馈与修正体系。
市场一体化要体现稳定、创新、竞争性协调发展的市场动态变革过程,即市场一体化本身具有的动态意义,因此本身涉及的农业(发展)政策、地区(合作)及财政政策要在一体化发展过程中体现出内容上的创新和发展。特别是现在的“板块”经济,促进其网络式发展,将大大增强中国市场一体化的发展潜力。无论是农业问题还是地区经济发展问题,在合作、谈判与争取权利中,充分利用可以利用的国际规则和生产要素,可以增强自身内部市场回旋的余地,获得为不断完善的内部市场争取更广阔发展空间的能力。
After 30 years of reform and opening-up, regional and urban-rural economic gaps in China have been broadening, the phenomena of market segmentation have been sharpening and the feature of“dual economy”has still been very obvious. No matter examined from localization coefficient reflecting regional protectionism, or from the inter-provincial trade flow of goods and factors, or from integration degree of marketization of the links of production chain, the integration of internal market of China with a unique sovereignty is not just as one wishes. In addition, there are big differences of marketization degree amongst regions and amongst industries, and there are clear divisions of interests in the process of market integration. All of these will be obstacles to sustainable development of Chinese economy and to build a harmonious society. So making efforts to integrate market and promote development of market integration is important work at present.
At the beginning of regional integration of the European Union (EU), there was a big regional economic gap and somehow showed a“dual economy”feature among its member states, but so far its integration has been deepening to economic and monetary union,which is significantly helpful for effective resource allocation among the member states, and hence substantially promotes their economic development. In this process, common agricultural policy and common regional policy play crucial roles in deepening the integration. Since there are some objective differences in quantity and in quality amongst various production factors, market integration involves regional problems as well as industrial ones. As the foundation of industry, agricultural problem and hence problem of regional economic gap will not be effectively solved for the fragility of agriculture and great impacts of geography and climate on employment of farmers and their income. Combining with other policies (especially financial policy), solving regional problem through regional policy can coordinate or balance related interests amongst industries, and hence give full impetus to agricultural development. Just for these reasons, they constitute most important foundation of market integration of the EU. Common agricultural policy promotes interest formation of agricultural and industrial sectors, while common regional policy make an attempt to resolve the interest imbalance problem arising from such reasons as readjustment of industrial structures for market integration. Common agricultural policy and common regional policy promote achievement of efficiency and equity based on an effective operating mechanism, which is helpful for development of market integration. Without these two common policies, European single market will not be promoted, economic and monetary union (the Euro) will not emerge, and let alone national interests, difficult to coordinate, of member states with different sovereignties.
In the process of agricultural development and regional economic balancing, visual angle of development of dual economy and the theories related to agricultural and regional economic development, such as endogenous growth, convergence, market power and (im)balanced development, fully illustrate that combination and promotion of functional and institutional integrations based on concrete industrial, agricultural and regional development projects, especially common policies coordinating interests of the member states and industrial development, played an important role, which can restrain local market segmentation and etc.
Common agricultural policy met the needs of European integration after WWII, which highlights value of policy selection in the process of promoting market integration of European Community. Its role evidently reveals fundamental status of agriculture and the policy itself and promotes development of market integration based on balancing interests of member states: essential goals of market integration. While common regional policy touches a basic issue of market development: market failure. With an orientation of resource and industry, the self-help assistant under common regional policy gains widespread support. A sound development of market integration itself gives a good explanation of real connotation of common regional policy: mix together of regions in a sense of the community, not a country.
In the meantime, regional economic gap is increasingly expanding in China, which has aroused general concern over interest distribution and market integration. Bad development of agriculture and rural area is a very important reason for regional economic gap. The development of "agriculture, rural areas and farmers”and the narrow of regional economic gap emphasize equilibrium and coordination of interest. If the issue of“agriculture, rural areas and farmers”is not carefully and skillfully handled, the gap between urban and rural areas, as well as economic gap between eastern and western regions for different urbanization level, will further broaden, and interest distribution under national reform and opening-up strategy will be more imbalanced. In the process market integration,only development of agriculture (and even rural areas and farmers) can find a way out to ensure grain supply and people's well-being of China, and to lay a solid foundation to industrial coordinated development and promotion function of agriculture to other industries. Adversely, the broadening of regional economic gap will strengthen comparative disadvantages of central and western China where a large proportion of urban population exists,and it is difficult to safeguard interests of "agriculture, rural areas and farmers”, and the difficulty of social harmony will become bigger. So, Chinese market integration still embodies that fundamental agricultural and regional problems mix together. To emphasize fundamental status, to fasten development of "agriculture, rural areas and farmers”and to attempt to narrow regional economic gap will be focal point of the work of promoting market integration and building harmonious society.
Common policy plays an important role in regulating different interests in market development. Policy design and policy itself embody both functional integration and institutional one. Especially common/unified policy can perform an important function of coordinate interest reallocation amongst regions and industries. Endogenous growth of government expenditure under common policy can make demand and supply of factors more elastic through market integration, and hence promote welfare of two sides. Common policy, with characteristics of industry, resource and location, can play an important role in weaken localism segmenting internal market. First, it can reduce vanity projects; second, it can regulate intervene power, with an orientation of local interests, of local government; third, it will not weaken role of endogenous economic growth of local government who works with a starting point of market integration, only central government must establish and perfect payment mechanism of financial transfer to coordinate interests in the integrating market.
On the way to build a harmonious society and persist in the scientific outlook on development, China must continue to promote market integration and coordinate interests. In this connection China may use the experiences of the operating mechanism of common agricultural policy and common regional policy of the EU in the process of market integration, including: 1) to formulate and perfect unified agricultural and regional policies promoting industrial development based on market; 2) to set up agricultural and regional development fund or regional policy with characteristics of industries, resources and regions ; 3) to establish concrete agricultural and regional development programmes with a goal of promoting market integration; 4) to build an organization with clearly-defined responsibilities, which guides, supervises, coordinates agricultural and regional development and policy-making based on market; 5) to establish an effective financial transfer payment mechanism; 6) to build an effective feedback and correction system.
Market integration should reflect a dynamic change process of stable, innovatory, competitive and coordinated development. So agriculture, regional and financial policies should embody innovation and development of policy content in the process of market integration. Especially today to promote open and interconnected development of“plate”economy will largely strengthen development potential of Chinese market integration. Making full use of international rules and factors to resolve agricultural and regional economic problems in negotiation, cooperation and competition will leave enough room for themselves to maneuver and to gain power to perfect continuously internal market and strive for a broader development space.
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